Professional Documents
Culture Documents
Plaintiffs-Appellees,
v.
____________________
Nos.%14(2058%&%14(2059%
3%%
4%
Nos.%14(2058%&%14(2059%%
on%the%Supreme%Courts%decision%in%Crawford'v.'Marion'CounG
ty'Election'Board,%553%U.S.%181%(2008).%Affirming%a%decision%by%
this% court,% see% 472% F.3d% 949% (7th% Cir.% 2007),% the% Supreme%
Court% upheld% an% Indiana% law% requiring% photo% identification%
of%voters.%The%panel%calls%Wisconsins%law%similar.%It%would%
be%more%accurate%to%say%that%the%laws%belong%to%the%same%gen(
re,% namely% strict% photo% ID% voter% eligibility% laws.% The% two%
states% laws% are% importantly% dissimilar,% not% only% in% their%
terms% but% in% the% evidentiary% records% of% the% two% cases.% Alt(
hough%in%Crawford%as%in%this%case%the%record%contained%no%ev(
idence% of% in(person% voter% impersonation% at% polling% places%
actually% occurring% in% Indiana% at% any% time,% there% had% been%
scattered% instances% of% such% fraud% in% recent% American% elec(
tions.%553%U.S.%at%19596.%And%there%was%no%evidence%that%the%
Indiana%law%was%likely%to%disenfranchise%more%than%a%handful%
of% voters.% Given% the% record,% the% Supreme% Court% was% unwill(
ing% to% perform% a% unique% balancing% analysis% that% looks% spe(
cifically% at% a% small% number% of% voters% who% may% experience% a%
special% burden% under% the% statute% and% weights% their% burdens%
against% the% States% broad% interests% in% protecting% election% in(
tegrity,%especially%since%on%the%basis%of%the%evidence%in%the%
record% it% is% not% possible% to% quantify% either% the% magnitude% of%
the% burden% on% this% narrow% class% of% voters% or% the% portion% of%
the%burden%imposed%on%them%that%is%fully%justified.%Id.%at%200.%
Judge%Evans,%dissenting%from%our%decision%in%Crawford,%called%
the% Indiana% law% a% not(too(thinly(veiled% attempt% to% discour(
age% election(day% turnout% by% certain% folks% believed% to% skew%
Democratic.% 472% F.3d% at% 954.% But% he% cited% no% evidence% to%
support%his%conjecturea%conjecture%that%now%seems%presci(
ent,%however.%
Crawford% was% decided% by% the% Supreme% Court% almost% six%
and%a%half%years%ago,%on%the%basis%of%the%evidence%presented%
Nos.%14(2058%&%14(2059%
5%%
in% that% case% and% the% particulars% of% the% Indiana% statute.% The%
decision%does%not%resolve%the%present%case,%which%involves%a%
different%statute%and%has%a%different%record%and%arises%against%
a% background% of% a% changed% political% culture% in% the% United%
States.%It%is%a%disservice%to%a%court%to%apply%its%precedents%to%
dissimilar% circumstances.% Crawford% dealt% with% a% particular%
statute%and%a%particular%evidentiary%record.%The%statute%at%is(
sue%in%this%case%has%different%terms%and%the%case%challenging%
it% a% different% record,% the% terms% and% the% record% having% been%
unknown%to%either%our%court%(affirmed%by%the%Supreme%Court%
in%Crawford)%or%the%Supreme%Court.%
The% panel% opinion% recognizes% that% there% are% differences%
between% the% two% statutes% and% the% two% records,% but% does% not%
recognize% the% significance% of% the% differences.% The% Indiana%
statute% challenged% in% Crawford% was% less% restrictive% than% the%
Wisconsin% statute% challenged% in% this% case.% Indiana% accepts%
any% Indiana% or% U.S.% government(issued% ID% that% includes%
name,% photo,% and% expiration% date.% Wisconsins% statute% per(
mits% voters% to% use% only% a% Wisconsin% drivers% license% or% Wis(
consin% state% card,% a% military% or% tribal% ID% card,% a% passport,% a%
naturalization%certificate%if%issued%within%two%years,%a%student%
ID% (so% long% as% it% contains% the% students% signature,% the% cards%
expiration%date,%and%proof%that%the%student%really%is%enrolled%
in% a% school),% or% an% unexpired% receipt% from% a% drivers% li(
cense/ID% application.% Wisconsin% does% not% recognize% military%
veteran%IDs,%student%ID%cards%without%a%signature,%and%other%
government(issued%IDs%that%satisfy%Indianas%criteria.%%
Indianas%statute%does%not%require%absentee%voters%to%pre(
sent%photo%identification,%and%permits%voters%to%vote%absentee%
if%they%expect%to%be%absent%from%their%district%on%election%day,%
are% older% than% 65,% cant% vote% in% person% because% of% illness% or%
6%
Nos.%14(2058%&%14(2059%%
injury%or%are%caring%for%someone%with%an%illness%or%an%injury,%
are% scheduled% to% work% during% the% 12(hour% period% in% which%
the%polls%are%open,%are%members%of%the%military,%are%celebrat(
ing% a% religious% holiday,% or% are% in% the% states% address% confi(
dentiality%program%(victims%of%domestic%violence,%for%exam(
ple).%Thus,%many%people%who%might%find%it%difficult%to%obtain%
photo% identification% can% vote% absentee% and% are% therefore% ex(
cused%from%having%to%present%a%photo%ID.%Wisconsin,%in%con(
trast,%requires%absentee%voters%to%submit%a%photo%ID%the%first%
time%they%request%an%absentee%ballot,%and%in%subsequent%elec(
tions%as%well%if%they%change%their%address%or%are%required%to%
re(register% to% vote,% or% if% they% change% their% name,% as% many%
women% still% do% upon% marrying.% A% recent% national% survey%
found%that%
millions% of% American% citizens% do% not% have% readily%
available% documentary% proof% of% citizenship.% Many%
moreprimarily% women(((do% not% have% proof% of% citi(
zenship% with% their% current% name.% The% survey% also%
showed%that%millions%of%American%citizens%do%not%have%
government(issued% photo% identification,% such% as% a%
drivers%license%or%passport.%Finally,%the%survey%demon(
strated% that% certain% groupsprimarily% poor,% elderly,%
and% minority% citizensare% less% likely% to% possess% these%
forms%of%documentation%than%the%general%population.%
Brennan%Center%for%Justice,%Citizens%Without%Proof:%A%Sur(
vey%of%Americans%Possession%of%Documentary%Proof%of%Citi(
zenship%and%Photo%Identification,%www.brennancenter.org/
sites/default/files/legacy/d/download_file_39242.pdf% (visited%
October%8,%2014,%as%were%the%other%websites%cited%in%this%opin(
ion).%
Wisconsins%statutory%exceptions%to%the%requirement%that%
one%must%have%a%photo%ID%to%be%permitted%to%vote,%which%are%
Nos.%14(2058%&%14(2059%
7%%
more% limited% than% those% recognized% by% the% Indiana% law,% in(
clude%members%of%the%military,%overseas%voters%who%have%no%
intention% of% ever% returning% to% live% in% the% United% States,% par(
ticipants% in% the% states% confidentiality% program,% and% voters%
who% being% infirm% or% disabled% are% indefinitely% confined% to%
their%homes%or%to%care%facilities.%%
The%Indiana%statute%permits%voters%without%a%photo%ID%to%
cast% a% provisional% ballot% and% within% ten% days% after% the% elec(
tion%present%a%photo%ID%to%a%circuit%court%clerks%office;%indi(
gent% voters% unable% to% procure% a% photo% ID% by% that% deadline%
can,% by% executing% an% affidavit% confirming% their% identity% and%
indigence,%have%their%ballots%counted.%Wisconsin%has%no%pro(
vision%for%indigent%voters.%It%does%permit%voters%to%cast%a%pro(
visional%ballot%and%later%supply%a%photo%ID,%but%requires%that%
they%do%so%by%the%Friday%after%the%election,%which%gives%them%
just% three% days% to% comply% in% national% elections,% since% such%
elections%are%always%held%on%Tuesdays.%
These% are% not% trivial% differences% between% the% two% stat(
utes.%
The% panel% opinion% cites% the% recommendation% of% the%
Commission%on%Federal%Election%Reform,%Building'Confidence'
in'U.S.'Elections'18%(2005),%that%photo%IDs%be%required%for%vot(
ing,%but%omits%the%Commissions%statement%that%they%should%
be% easily% available% and% issued% free% of% charge,% id.' at% 19,% and%
its% recommendation% that% states% should% play% an% affirmative%
role%in%reaching%out%to%non(drivers%by%providing%more%offic(
es,% including% mobile% ones,% to% % provide% photo% IDs% free% of%
charge,%and%allow%voters%who%do%not%have%a%photo%ID%dur(
ing%a%transitional%period%[to]%receive%a%provisional%ballot%that%
would%be%counted%if%their%signature%is%verified.%Id.%at%iv.%
8%
Nos.%14(2058%&%14(2059%%
I%turn%now%to%the%evidence%in%the%respective%cases.%In%our%
Crawford% opinion% we% pointed% out! that% none% of% the% plaintiffs%
claimed%that%they%wouldnt%vote%in%the%upcoming%election%be(
cause%of%the%photo%ID%law.%No%doubt%there%are%at%least%a%few%
such% people% in% Indiana,% but% the% inability% of% the% sponsors% of%
this% litigation% to% find% any% such% person% to% join% as% a% plaintiff%
suggests% that% the% motivation% for% the% suit% is% simply% that% the%
law%may%require%the%Democratic%party%%to%work%harder%to%
get%every%last%one%of%their%supporters%to%the%polls.%472%F.2d%
at% 952;% see% also% the% Supreme% Courts% plurality% opinion,% 533%
U.S.%at%187.%In%the%present%case,%in%contrast,%eight%persons%tes(
tified%that%they%want%to%vote%in%the%November%4%election!but!
have% been% unable% to% obtain% the% required% identification.% In%
Crawford%it%was%estimated%that%about%43,000%Indiana%residents%
lacked%the%requisite%identification,%which%was%1%percent%of%the%
states%voting%population,%while%in%this%case%the%district%court%
found% that% 300,000% registered% voters9% percent% of% all% regis(
tered% voters% in% Wisconsinlack% qualifying% identification.%
Many%of%them%also%lack%the%documents%theyd%need%in%order%
to% obtain% a% photo% ID,% or% face% other% impediments% to% getting%
one% but% are% not% within% the% narrow% band% of% voters% excused%
from% having% to% present% a% photo% ID% when% voting.% According%
to% an% expert% witness,% at% least% 20,162% eligible% voters% in% Mil(
waukee% County% alone% possess% neither% a% photo% ID% nor% the%
documents% they% would% need% to% obtain% one.% And% in% the% dis(
trict%courts%words%a%substantial%number%of%the%300,000%plus%
eligible%voters%who%lack%a%photo%ID%are%low(income%individ(
uals%%who%have%encountered%obstacles%that%have%prevented%
or%deterred%them%from%obtaining%a%photo%ID.%
The%panel%was%literally%correct%that%the%district%court%did%
not%find%that%substantial%numbers%of%persons%eligible%to%vote%
have%tried%to%get%a%photo%ID%but%been%unable%to%do%so,%but%its%
Nos.%14(2058%&%14(2059%
9%%
10%
Nos.%14(2058%&%14(2059%%
cles].%There%are%92%DMV%service%centers%in%the%state.%
All%but%two%of%these%close%before%5:00%p.m.%and%only%
one% is% open% on% weekends.% So,% it% is% likely% that% the%
person% will% have% to% take% time% off% from% work.% The%
person% will% either% need% to% use% vacation% time% if% its%
available%or%forego%the%hourly%wages%that%he%or%she%
could%have%earned%in%the%time%it%takes%to%obtain%the%
ID.% % The% person% will% also% have% to% arrange% for%
transportation.% Since% this% person% does% not% have% a%
driverns%license%and%is%low%income,%most%likely%he%or%
she% must% use% public% transportation% or% arrange% for%
another%form%of%transportation.%%Further,%for%some%
individuals%public%transportation%will%be%of%no%help%
because%not%all%of%the%DMVs%service%centers%are%ac(
cessible%by%public%transit.%
If% the% person% does% not% have% all% of% the% docu(
ments% the% DMV% requires% to% obtain% an% ID,% then% the%
person% will% most% likely% have% to% visit% at% least% one%
government%agency%in%addition%to%the%DMV.%If%that%
is%the%case,%then%the%person%will%likely%have%to%take%
even% more% time% off% of% work% and% pay% additional%
transportation% costs.% % Perhaps% it% is% possible% for% a%
person%to%obtain%a%missing%underlying%document%by%
mail,%but%even%so%that%will%require%time%and%effort.%
A%person%who%needs%to%obtain%a%missing%under(
lying%document%is%also%likely%to%have%to%pay%a%fee%for%
the%document.%For%some%low(income%individuals,%it%
will%be%difficult%to%pay%even%$20.00%for%a%birth%certif(
icate.%%
An% additional% problem% is% whether% a% person%
who%lacks%an%ID%can%obtain%one%in%time%to%use%it%to%
vote.%For%many%who%need%an%ID,%it%will%take%longer%
than% a% day% or% two% to% gather% the% necessary% docu(
ments%and%make%a%trip%to%the%DMV.%Indeed,%if%a%per(
Nos.%14(2058%&%14(2059%
11%%
Frank' v.' Walker,% 2014% WL% 1775432,% at% *1416% (E.D.% Wis.% Apr.%
29,%2014)%(citations%and%footnotes%omitted).%
In%upholding%the%Indiana%statute,%both%our%Crawford%opin(
ion%and%the%Supreme%Courts%plurality%opinion%noted%that%In(
diana%voter%rolls%were%substantially%inflatedthey%contained%
1.3% million% more% names% than% there% were% eligible% voters.% The%
Supreme% Court% also% cited% a% report% by% the% Commission% on%
Federal%Election%Reform%which%stated%that%although%there%is%
no% evidence% of% extensive% fraud% in% U.S.% elections% or% of% multi(
ple%voting%%both%occur,%and%it%could%affect%the%outcome%of%a%
close% election.% % Photo% [identification% cards]% currently% are%
needed%to%board%a%plane,%enter%federal%buildings,%and%cash%a%
check.% Voting% is% equally% important.% 553% U.S.% at% 194.% (Well%
see,%by%the%way,%that%the%Commissions%statement%that%photo%
12%
Nos.%14(2058%&%14(2059%%
Nos.%14(2058%&%14(2059%
13%%
Ballot%Stuffing;%
Misrecording%of%Votes;%
Misuse%of%Proxy%Votes;%
Destruction%or%Invalidation%of%Ballots;%
Tampering%with%Electronic%Voting%Machine.%
14%
Nos.%14(2058%&%14(2059%%
keeping% (so% that% people% who% have% moved% after% the% date% of%
registration%do%not%vote%in%the%wrong%precinct).%Wisconsins%
photo% ID% law% has% nothing% to% do% with% voting% in% the% correct%
precinct.%According%to%testimony%by%the%director%and%general%
counsel%of%the%Wisconsin%Government%Accountability%Board,%
the%address%on%a%voters%ID%does%not%have%to%match%his%or%her%
voting%address.%
We% can% learn% something% both% about% the% significance% of%
voter(impersonation% fraud% and% the% likely% motivation% for% the%
Wisconsin%statute%from%a%report%by%the%National%Conference%
of% State% Legislatures,% Voter' Identification' Requirements'|'Voter'
ID'Laws,%www.ncsl.org/research/elections(and(campaigns/vo
ter(id.aspx.%The%report%was%issued%on%September%12th%of%this%
year%and%thus%covers%all%requirements%applicable%to%the%forth(
coming%November%election.%
We% learn% from% the% report% that% 32% states% require% voters% to%
present%some%form%of%identification%at%the%polling%station%but%
that% of% these% only% 17% require% photo% identification.% The% other%
15%usually%will%accept%a%utility%bill,%a%non(photo%ID,%or%some%
other%document%that%includes%the%voters%name%and%address.%
The%32%states%also%differ%in%the%strictness%with%which%the%iden(
tification% requirement% is% enforced.% The% report% classifies% as%
strict%those%12%states,%including%Wisconsin,%that%require%the%
voter%to%show%identification%before%a%ballot%will%be%counted%at%
the%polling%place,%or%to%cast%a%provisional%ballot%and%take%ad(
ditional%steps,%such%as%presenting%acceptable%ID%at%a%board%of%
elections%office%within%a%specified%period%after%election%day.%
According%to%the%report,%only%9%states,%including%Wiscon(
sin,%impose%strict%photo%identification%requirements.%The%oth(
er%states%permit%at%least%some%voters%to%cast%a%ballot%without%
necessarily% requiring% any% further% action% on% the% part% of% the%
15%%
Nos.%14(2058%&%14(2059%
voter%after%election%day%for%a%vote%to%be%counted.%Instead,%the(
se%states%may,%for%example,%require%the%voter%to%sign%an%affi(
davit,%or%a%poll%worker%to%vouch%for%the%voter.%
The%data%are%summarized%in%the%following%table%and%map.%
TABLE!1%
Voter!Identification!Laws!in!Force!in!2014!
%
Strict%%
Non(
Strict%%
%
%
Photo%ID%
Arkansas%
Georgia%
Indiana%
Kansas%
Mississippi%
Alabama%
Florida%
Hawaii%
Idaho%
Non(Photo%ID%
Tennessee%
Texas%
Virginia%
Wisconsin!
Arizona%
%
North%Dakota%
Ohio%
Louisiana%
Michigan%
Rhode%Island%
South%Dakota%
Alaska%
Colorado%
Connecticut%
Delaware%
Kentucky%
Missouri%
Montana%
New%Hampshire%
Oklahoma%
South%Carolina%
Utah%
Washington%
16%
Nos.%14(2058%&%14(2059%%
%
%
%
%
All%the%strict%photo%ID%states%are%politically%conservative,%
at% least% at% the% state% level,% as% are% five% of% the% eight% non(strict%
photo% ID% states% (all% but% Hawaii,% Michigan,% and% Rhode% Is(
land).% Table% 2% provides% specifics% on% the% political% makeup% of%
the%governments%of%the%nine%strict%photo%ID%states%at%the%time%
their%photo%ID%laws%were%enacted.%
%
%
Nos.%14(2058%&%14(2059%
17%%
TABLE!2!
STATES!WITH!STRICT!PHOTO!ID!LAWSPOLITICAL!MAKEUP!
WHEN!THE!LAWS!WERE!ADOPTED%
Arkansas:% Democratic% governor,% but% both% the% House%
and%Senate%were%under%Republican%control.%
Georgia:% Republican% governor,% Republican% control% of%
both%the%House%and%Senate.%
Indiana:! Republican% governor,% Republican% control% of%
both%the%House%and%Senate.%
Kansas:! Republican% governor,% Republican% control% of%
both%the%House%and%Senate.%
Mississippi:% Adopted% by% the% voters% through% a% ballot%
initiative.% Republicans,% who% already% controlled% the%
governorship% and% the% state% Senate,% won% a% majority% of%
seats%in%the%House%in%that%same%election.%%
Tennessee:! Republican% governor,% Republican% control%
of%both%the%House%and%Senate.%
Texas:% Republican% governor,% Republican% control% of%
both%the%House%and%Senate.%
Virginia:% Republican% governor,% Republican% control% of%
both%the%House%and%Senate.%
Wisconsin:% Republican% governor,% Republican% control%
of%both%the%House%and%Senate.!
The%basic%pattern%holds%for%the%three%strict%non(photo%ID%
states.!Arizona%adopted%such%a%law%by%initiative%in%2004,%at%a%
time%when%the%state%had%a%Democratic%governor%but%the%Re(
publicans% controlled% both% houses% of% the% state% legislature% (as%
they% have% between% 1993% and% 2013,% except% for% a% brief% period%
between% 2001% and% 2002% when% the% senate% was% evenly% divid(
ed).%Both%North%Dakota%and%Ohio%had%Republican%governors,%
and% Republicans% controlled% both% houses% of% the% legislatures,%
when%those%states%strict%ID%statutes%were%enacted.%%
18%
Nos.%14(2058%&%14(2059%%
Nos.%14(2058%&%14(2059%
19%%
20%
Nos.%14(2058%&%14(2059%%
Nos.%14(2058%&%14(2059%
21%%
Consider%now%the%other%side%of%the%balancethe%effect%of%
strict% voter% ID% laws% on% lawful% turnout.% The% panel% opinion%
does%not%discuss%the%cost%of%obtaining%a%photo%ID.%It%assumes%
the% cost% is% negligible.% Thats% an% easy% assumption% for% federal%
judges%to%make,%since%we%are%given%photo%IDs%by%court%securi(
ty% free% of% charge.% And% we% have% upper(middle(class% salaries.%
Not% everyone% is% so% fortunate.% Its% been% found% that% the% ex(
penses% [of% obtaining% a% photo% ID]% for% documentation,% travel,%
and% waiting% time% are% significantespecially% for% minority%
groups% and% low(income% voterstypically% ranging% from%
about%$75%to%$175.%%Even%when%adjusted%for%inflation,%these%
figures% represent% substantially% greater% costs% than% the% $1.50%
poll% tax% outlawed% by% the% 24th% amendment% in% 1964.% Sobel,%
supra,%at%2.%
The%panel%opinion%suggests%that%obtaining%a%photo%ID%to%
vote%cant%be%a%big%deal,%because%one%needs%a%photo%ID%to%fly.%
Thats%a%common%misconception.%See%Transportation%Security%
Administration,%Acceptable'IDs,%www.tsa.gov/traveler(inform
ation/acceptable(ids.% Since,% despite% the% 9/11% attacks% that%
killed% thousands,% a% photo% ID% is% not% considered% essential% to%
airline%safety,%it%seems%beyond%odd%that%it%should%be%consid(
ered%essential%to%electoral%validity.%
The%panel%piles%error%on%error%by%stating%that%photo%ID%
is% essential% [not% only]% to% board% an% airplane% % [but% also% to]%
pick% up% a% prescription% at% a% pharmacy,% open% a% bank% ac(
count,%,%buy%a%gun,%or%enter%a%courthouse%to%serve%as%a%juror%
or%watch%the%argument%of%this%appeal.%In%35%states,%including%
Wisconsin,% you% dont% need% a% photo% ID% to% pick% up% all% pre(
scriptions.%Centers%for%Disease%Control%and%Prevention,'Law:'
Requiring' Patient' Identification' Before' Dispensing,% www.
cdc.gov/homeandrecreationalsafety/Poisoning/laws/id_req.h
22%
Nos.%14(2058%&%14(2059%%
tml.%Bank%customers%do%not%need%a%photo%ID%to%open%a%bank%
account.%U.S.%Dept.%of%the%Treasury,%Office%of%the%Comptrol(
ler%of%the%Currency,%Answers'&'Solutions;'Answers'About'IdenG
tification,% www.helpwithmybank.gov/get(answers/bank(acco
unts/identification/faq(bank(accounts(identification(02.html.%
Federal%law%does%not%require%a%photo%ID%to%purchase%firearms%
at% gun% shows,% flea% markets,% or% online.% U.S.% Dept.% of% Justice,%
Office%of%the%Inspector%General,%Review'of'ATFs'Project'GunG
runner% 10% (Nov.% 2010),% www.justice.gov/oig/reports/ATF/
e1101.pdf.% Its% true% that% our% courthouse% requires% a% photo% ID%
to%enter,%but%the%Supreme%Court%requires%no%identification%at%
all%of%visitors.%
The% panel% does% say,% in% the% same% paragraph% of% its% opin(
ion,%that%it%accept[s]%the%district%courts%finding%[that%300,000%
registered% voters% lack% acceptable% photo% ID% in% Wisconsin]% in%
this% case,% but% coming% after% a% recitation% that% mistakenly% im(
plies%that%one%can%do%virtually%nothing%in%this%society%without%
a% photo% ID,% the% implication% is% that% those% 300,000% have% only%
themselves%to%blame%for%not%being%allowed%to%vote.%
Robert% S.% Erikson% &% Lorraine% C.% Minnite,% Modeling%
Problems% in% the% Voter% IdentificationVoter% Turnout% De(
bate,%8%Election'L.J.%85,%98%(2009),%notes%that%recent%research%
%strongly%suggests%that%strict%voter%ID%laws%will%negatively%
affect% certain% voters,% including% minorities,% at% least% in% the%
short(run,%though%the%authors%acknowledge%doubt%about%the%
statistical%robustness%of%the%evidence.%A%study%by%R.%Michael%
Alvarez,% Delia% Bailey,% and% Johnathan% N.% Katz,% entitled% The%
Effect% of% Voter% Identification% Laws% on% Turnout,% California%
Institute%of%Technology,%Social%Science%Working%Paper%1267R%
(Jan.% 2008),% http://papers.ssrn.com/sol3/papers.cfm?abstract
_id=1084598,% finds% that% the% strictest% forms% of% voter% identifi(
Nos.%14(2058%&%14(2059%
23%%
24%
Nos.%14(2058%&%14(2059%%
Stephen%Ansolabehere%&%Nathaniel%Persily,%Vote%Fraud%
in%the%Eye%of%the%Beholder:%The%Role%of%Public%Opinion%in%the%
Challenge%to%Voter%Identification%Requirements,%121%Harv.'L.'
Rev.% 1727% (2008),% finds% that% perceptions% of% voter(
impersonation% fraud% are% unrelated% to% the% strictness% of% a%
states%voter%ID%law.%This%suggests%that%these%laws%do%not%re(
duce% such% fraud,% for% if% they% did% one% would% expect% percep(
tions%of%its%prevalence%to%change.%The%study%also%undermines%
the% suggestion% in% the% panels% opinion% (offered% without% sup(
porting%evidence)%that%requiring%a%photo%ID%in%order%to%be%al(
lowed%to%vote%increases%voters%confidence%in%the%honesty%of%
the%election,%and%thus%increases%turnout.%If%perceptions%of%the%
prevalence% of% voter(impersonation% fraud% are% unaffected% by%
the% strictness% of% a% states% photo% ID% laws,% neither% will% confi(
dence%in%the%honesty%of%elections%rise,%for%it%would%rise%only%if%
voters% were% persuaded% that% such% laws% reduce% the% incidence%
of%such%fraud.%
The%panel%opinion%dismisses%the%Absolabehere%and%Persi(
ly%article%on%the%ground%that%because%it%was%published%in%the%
Harvard' Law' Review,% it% was% not% peer(reviewed.% So% much% for%
law% reviews.% (And% what% about% Supreme% Court% opinions?%
Theyre% not% peer(reviewed% either.)% Persily,% incidentally,% was%
chosen%to%be%Research%Director%for%the%Presidential%Commis(
sion% on% Election% Administration,% a% nonpartisan% body% co(
chaired% by% the% former% counsel% to% Governor% Romneys,% and%
the% former% counsel% to% President% Obamas,% 2012% presidential%
election%campaigns.%
The%studies%weve%cited%and%the%evidentiary%record%com(
piled%in%the%district%court%show%that%Wisconsin%is%wise%not%to%
argue%that%voter(impersonation%fraud%is%common%in%its%state.%
Instead% it% argues% that% such% fraud% is% uncommon% because% its%
Nos.%14(2058%&%14(2059%
25%%
26%
Nos.%14(2058%&%14(2059%%
The% panel% is% not% troubled% by% the% absence% of% evidence.% It%
deems% the% supposed% beneficial% effect% of% photo% ID% require(
ments%on%public%confidence%in%the%electoral%system%a%legis(
lative%facta%proposition%about%the%state%of%the%world,%and%
asserts% that% on% matters% of% legislative% fact,% courts% accept% the%
findings%of%legislatures%and%judges%of%the%lower%courts%must%
accept% findings% by% the% Supreme% Court.% In% so% saying,% the%
panel% conjures% up% a% fact(free% cocoon% in% which% to% lodge% the%
federal% judiciary.% As% there% is% no% evidence% that% voter(
impersonation% fraud% is% a% problem,% how% can% the% fact% that% a%
legislature%says%its%a%problem%turn%it%into%one?%If%the%Wiscon(
sin% legislature% says% witches% are% a% problem,% shall% Wisconsin%
courts% be% permitted% to% conduct% witch% trials?% If% the% Supreme%
Court% once% thought% that% requiring% photo% identification% in(
creases% public% confidence% in% elections,% and% experience% and%
academic%study%since%shows%that%the%Court%was%mistaken,%do%
we% do% a% favor% to% the% Courtdo% we% increase% public% confi(
dence%in%electionsby%making%the%mistake%a%premise%of%our%
decision?%Pressed%to%its%logical%extreme%the%panels%interpre(
tation%of%and%deference%to%legislative%facts%would%require%up(
holding%a%photo%ID%voter%law%even%if%it%were%uncontested%that%
the%law%eliminated%no%fraud%but%did%depress%turnout%signifi(
cantly.%
The%concept%of%a%legislative%fact%comes%into%its%own%when%
there% is% no% reason% to% believe% that% certain% facts% pertinent% to% a%
case%vary%from%locality%to%locality,%or%from%person%to%person;%
a%typical%definition%of%legislative%facts%is%broad,%general%facts%
that%are%not%unique%to%a%particular%case%and%provide%therefore%
an% appropriate% basis% for% legislation% of% general% application.%
For%example,%black%lung%disease%(pneumoconiosis)%is%either%a%
progressive%disease,%like%asbestosis,%or%it%is%not.%Nothing%sup(
Nos.%14(2058%&%14(2059%
27%%
ports%the%idea%that%it%is%progressive%for%Miner%A%and%halts%for%
Miner%B.%
Even% legislative% facts% are% not% sacrosanct,% though% those%
challenging%the%legislative%judgment%must%convince%the%court%
that%the%legislative%facts%on%which%the%classification%is%appar(
ently%based%could%not%reasonably%be%conceived%to%be%true%by%
the% governmental% decisionmaker.% Vance' v.' Bradley,% 444% U.S.%
93,% 111% (1979).% And% anyway% voter% fraud,% voter% habits,% voter%
disenfranchisement% are% not% legislative% facts,% owing% to% the%
great% variance% across% and% even% within% states% in% the% admin(
istration%of%elections.%Some%states%have%small%enough%popula(
tions,% or% at% least% some% of% their% voting% precincts% have% small%
enough% populations,% that% poll% workers% are% likely% to% know%
personally%every%voter%who%shows%up%at%the%polls%to%vote.%No%
one%is%going%to%tell%the%poll%worker%that%he%or%she%is%someone%
else,%because%it%would%be%pointless.%Other%states,%or%areas,%are%
populous,%urban,%and%impersonal.%The%poll%workers%in%a%pre(
cinct%in%Manhattan%probably%have%never%laid%eyes%on%most%of%
the% voters% who% show% up% at% election% time.% The% likelihood% of%
other%forms%of%voter%fraud%similarly%depends%on%how%a%locali(
ty% conducts% its% elections.% We% learned% (if% we% didnnt% already%
know)% at% the% time% of% Bush' v.' Gore% that% every% locality% in% the%
country%conducts%elections%in%its%own%wayvoting%machines,%
paper% ballots,% computer% punchcards,% whatevera% % situation%
unsuited%to%the%application%of%the%concept%of%legislative%fact.%
The% panel% says% that% after% a% majority% of% the% Supreme%
Court% has% concluded% that% photo% ID% requirements% promote%
confidence,%a%single%district%judge%[in%fact%every%federal%judge%
other%than%at%least%five%Supreme%Court%Justices%en'bloc]%cannot%
say%as%a%fact%that%they%do%not,%even%if%20%political%scientists%
disagree%with%the%Supreme%Court.%Does%the%Supreme%Court%
28%
Nos.%14(2058%&%14(2059%%
really% want% the% lower% courts% to% throw% a% cloak% of% infallibility%
around%its%factual%errors%of%yore?%Shall%it%be%said%of%judges%as%
it%was%said%of%the%Bourbon%kings%of%France%that%they%learned%
nothing%and%forgot%nothing?%
The% panel% opinion% mentions% none% of% the% pertinent% aca(
demic% and% journalistic% literature,% except% the% Ansolabehere%
and% Persily% article,% which% it% disdains.% Nor% does% the% opinion%
acknowledge% that% voting% is% a% low(reward% activity,% as% evi(
denced% by% the% fact% that% turnout% tends% to% be% low.% The% panel%
opinion%states%that%if%photo%ID%is%available%to%people%willing%
to%scrounge%up%a%birth%certificate%and%stand%in%line%at%the%of(
fice% that% issues% drivers% licenses,% then% all% we% know% from% the%
fact% that% a% particular% person% lacks% a% photo% ID% is% that% he% was%
unwilling%to%invest%the%necessary%time.%But%that%ignores%So(
bels%study,%discussed%earlier,%and%the%broader%point%that%time%
is%cost.%The%author%of%this%dissenting%opinion%has%never%seen%
his% birth% certificate% and% does% not% know% how% he% would% go%
about%scrounging%it%up.%Nor%does%he%enjoy%waiting%in%line%
at% motor% vehicle% bureaus.% There% is% only% one% motivation% for%
imposing% burdens% on% voting% that% are% ostensibly% designed% to%
discourage% voter(impersonation% fraud,% if% there% is% no% actual%
danger% of% such% fraud,% and% that% is% to% discourage% voting% by%
persons% likely% to% vote% against% the% party% responsible% for% im(
posing%the%burdens.%
The%panel%opinion%bolsters%its%suggestion%that%scroung(
ing% up% a% birth% certificate% is% no% big% deal% by% stating% that% six%
voter%witnesses%in%the%district%court%did%not%testify%that%they%
had% tried% to% get% [a% copy% of% their% birth% certificate],% let% alone%
that% they% had% tried% but% failed.% Thats% another% error% by% the%
panel,%for%five%of%these%witnesses%testified%that%they%had%tried,%
but%had%failed,%to%obtain%a%copy%of%their%birth%certificate%in%or(
Nos.%14(2058%&%14(2059%
29%%
der%to%be%able%to%obtain%a%photo%ID%to%be%able%to%vote,%and%the%
sixth% (who% died% shortly% before% the% trial)% had% repeatedly% but%
unsuccessfully% tried% to% obtain% a% copy% of% her% birth% certificate.%
Illustrative% is% the% testimony% of% one% of% the% six% that% she% had%
tried% to% get% a% voter% ID% in% 2005% but% was% told% she% could% not%
without% a% birth% certificate.% She% was% given% a% form% to% send% to%
Mississippi,% where% she% had% been% born,% to% request% a% copy% of%
her%birth%certificate.%She%received%a%response%two%weeks%later%
that%there%was%no%such%personshe%hadnt%been%born%in%a%
hospital%and%so%there%was%no%record%of%her%birth.%She%is%regis(
tered%to%vote,%has%worked%as%a%poll%worker,%and%had%voted%in%
the%2012%election.%
A% community% organizer% testified% that% she% had% tried% to%
help% another% one% of% the% witnesses% obtain% a% copy% of% his% birth%
certificate% so% that% he% could% obtain% a% photo% ID.% He% had% been%
born%in%Milwaukee,%but%the%vital(records%office%had%no%record%
of%his%birth%and%asked%him%for%additional%documentation,%in(
cluding% elementary% school% recordswhich% he% did% not% have,%
unsurprisingly%since%he%is%86.%He%had%voted%in%previous%elec(
tions% but% will% be% unable% to% vote% in% the% forthcoming% Novem(
ber%4%election.%The%testimony%of%the%other%witnesses%was%simi(
lar.%
Any% reader% of% this% opinion% who% remains% unconvinced%
that%scrounging%for%ones%birth%certificate%can%be%an%ordeal%is%
referred%to%the%Appendix%at%the%end%of%this%opinion%for%disil(
lusionment.%
The%panel%opinion%notes%that%22%percent%of%eligible%voters%
in% Wisconsin% dont% register% to% vote,% and% infers% from% this
since%registration%is%not%burdensome%(you%dont%need%to%pre(
sent% a% photo% ID% in% order% to% register)that% the% 22% percent%
simply%arent%interested%in%voting.%Fair%enough.%But%the%panel%
30%
Nos.%14(2058%&%14(2059%%
Nos.%14(2058%&%14(2059%
31%%
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APPENDIX:)SCROUNGING)FOR)YOUR)BIRTH)CERTIFICATE)
IN)WISCONSIN)
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